Council Planning Report MCU17/0025

MCU17/0025 & OPW17/0095 - DEVELOPMENT APPLICATION FOR MATERIAL CHANGE OF USE FOR INDUSTRIAL BUSINESS TYPE 1 WAREHOUSE (SELF STORAGE FACILITY), OPERATIONAL WORKS (ADVERTISING DEVICES) AT 62 AND 64-66 RENE STREET, NOOSAVILLE

Document information

Author	Development Planner, Wilhelm Koschade
Environment & Sustainable Development Department
Index	ECM/ Application/ MCU17/0025 & OPW17/0095

Attachments	1. 	Proposal Plans – Self Storage Facility
2.	Proposal Plans – Advertising Devices

APPLICATION DETAILS
Applicant	Sharpe Enterprises Pty Ltd Tte
Proposal	Development Permit for Material Change of Use of Premises - Industrial Business Type 1 – Warehouse Development Permit for Operational Works – Advertising Devices
Properly Made Date	10 April 2017
Information Request Date	27 April 2017
Information Response Date	10 August 2017
Decision Due Date	09 October 2017
Number of Submissions	Not Applicable

PROPERTY DETAILS
Property Address	62 Rene St NOOSAVILLE  QLD  4566 64-66 Rene St NOOSAVILLE  QLD  4566
RP Description	Lot 59 RP 228906 Lot 280 SP 104321
Land Area	2096 Square Metres 4050 Square Metres
Existing Use of Land	Industrial Business Type 1 – Warehouse (Self Storage – ‘OnGuard Storage’)
STATUTORY DETAILS
SEQRP Designation	Urban Footprint
Locality	Noosaville Locality
Zone	Industry Zone
Overlays	Natural Hazards Overlay (Bushfire Hazard & Acid Sulfate Soils)
Assessment Type	Code
RECOMMENDATION
That Council note the report by the Development Planner to the Planning & Environment Committee Meeting dated 12 September 2017 regarding Application No. MCU17/0025 & OPW17/0095 for a Development Permit for Material Change of Use for Industrial Business Type 1 Warehouse (Self-Storage Facility) and Development Permit for Operational Works (Advertising Devices) situated at 62 and 64-66 Rene Street, Noosaville and:
Approve the application in accordance with the following conditions:
PLANNING
When Conditions must be Complied With
Unless otherwise stated, all conditions of this Decision Notice must be complied with prior to the use commencing, and then compliance maintained at all times while the use continues.
Approved Plans
Development undertaken in accordance with this approval must generally comply with the approved plans of development. The approved plans are listed in the following table unless otherwise amended by these conditions.
Plan No.	Rev.	Plan/Document Name	Date
OGSS-003-02	B	Site Layout – Stages 1, 2 & 3, prepared by Steve McGregor Design Service	06/03/2017
OGSS-003-03	B	Preliminary Site Plan - Stage 3, prepared by Steve McGregor Design Service	06/03/2017
OGSS-003-04	B	Basement Floor Plan, prepared by Steve McGregor Design Service	06/03/2017
OGSS-003-05	B	Ground Floor Plan, prepared by Steve McGregor Design Service	06/03/2017
OGSS-003-06	B	First Floor Plan, prepared by Steve McGregor Design Service	06/03/2017
OGSS-003-07	B	Elevation 1, 2, 3 & 4, prepared by Steve McGregor Design Service	06/03/2017
OGSS-003-09	B	Roof Plan, prepared by Steve McGregor Design Service	06/03/2017
OGSS-003-10	B	Streetscape Signage Elevation, prepared by Steve McGregor Design Service	06/03/2017
Nature and Extent of Approved Use
No external storage or use areas are approved on the site.
Building Height
The maximum height of the development must not exceed 10.4 metres above the finished ground level and the natural ground level.
Certification must be submitted to Council from a Licensed Surveyor which certifies that the building does not exceed the maximum height requirement of this Decision Notice.
Performance Bond
Security in the form of a cash bond or trading bank guarantee to the sum of $10,000 must be submitted to Council, to secure performance of all conditions of this approval, prior to the issue of a Development Permit for Operational Works. The cash bond or trading bank guarantee will be returned on performance of the conditions of approval less any costs incurred by Council in respect of enforcing performance of this permit. Council reserves the right to call upon the bond or guaranteed sum to effect compliance with conditions.
Street Identification
The street address of the development must be clearly visible and discernible from the primary frontage of the site by the provision of a street number and, where appropriate, the building name.
Water & Sewer Connections
An underground connection to reticulated water and sewerage must be provided to the development site in accordance with the standards and requirements of Northern SEQ Distributor–Retailer Authority (Unitywater).
A Certificate of Completion from the Northern SEQ Distributor–Retailer Authority (Unitywater) must be submitted to Council that certifies an underground connection to reticulated water and sewerage has been provided to the development site.
Landscaping
The development site must be landscaped.  The works must be undertaken in accordance with an Operational Works approval and The Noosa Plan’s Planning Scheme Policy 3 Landscaping Plants and Guidelines for that specific area and must include:
The landscaped areas as generally shown on the approved Site Plan.
Trees planted to achieve tall, dense screening vegetation within the western landscaped area to assist with screening the new building.
A minimum of 3 trees within the front setback area and along western boundary to soften the visual building bulk.
All landscape works must be established and maintained in accordance with the approved design for the life of the development, and in a manner that ensures healthy, sustained and vigorous plant growth.  All plant material must be allowed to grow to full form and be refurbished when its life expectancy is reached.
Nature and Extent of Approved Signs
The approved signs must not be used for the advertisement of goods and/or services not sold or conducted on the site (ie. third party advertising).
The approved signs must not exceed the dimensions and sign areas as shown on the Approved Plans.
The approved signs must be positioned wholly within the property boundaries of the subject site, and must not be located within or across any easements.
Illumination
The approved signs must not be illuminated in any way.
Movement
The approved signs must not revolve, move, contain moving parts, change its message, flash, have a moving or flashing border, or give the impression of movement in any way.
Maintenance
The approved signs must be properly maintained by the owner of the property to ensure the signs continue to comply with the Approved Plans and conditions of this Decision Notice.
ENGINEERING
All landscape works must be established and maintained in accordance with the approved design for the life of the development, and in a manner that ensures healthy, sustained and vigorous plant growth.  All plant material must be allowed to grow to full form and be refurbished when its life expectancy is reached.
External Works
Rene Street must be upgraded for the length of its frontage to the subject site.  The works must be undertaken in accordance with an Operational Works approval and must include in particular:
construction of a 2 metre wide footpath within the road verge extending from the existing path in the frontage of the site to the existing path to the east in the frontage of No 64 Rene Street
removal of the existing property access and reinstatement of the kerb, footpath and verge area to match the balance of the site frontage, including the provision of topsoil and turf where the existing verge is grassed
Site Access and Driveways
A sealed access driveway must be provided from Rene Street to all parking and manoeuvring areas of the development. The works must be undertaken in accordance with an Operational Works approval and must include in particular a driveway crossover in accordance with Council’s standard drawing RS-051.
The driveway at the rear of the site that crosses Council’s lane between No 62 and No 64 must be undertaken in accordance with an Operational Works approval. The access driveway must be designed and constructed to ensure that safe access to the reserve area at the rear is maintained for the public, Council, service authorities and emergency services. The works:
a.	must ensure that the pathway is clear at all times
b.	must not include any significant changes in height or retaining walls in the “pathway”
c.	a driveway that is 6m wide maximum
d.	include signage for drivers warning indicating that pedestrians may cross the driveway
e.	include signage for pedestrians warning indicating that vehicles may cross the pathway
Car Parking
A minimum of 4 car parking spaces must be provided and marked on the site and made available and accessible at all times while the use is open for business. The works must be undertaken in accordance with an Operational Works approval and must include in particular:
provision of vandal resistant public lighting with intensities to satisfy the requirements of Australian Standard AS1158: Public Lighting Code
crossfalls and gradients in accordance with Australian Standard AS2890: Parking Facilities
All car parking areas and access driveways must be maintained exclusively for vehicle parking and manoeuvring and kept in a tidy and safe condition at all times.
Directional signage must be provided to direct visitors and customers to the car parking spaces provided on site.
Stormwater Drainage
The site must be provided with a stormwater drainage system connecting to a lawful point of discharge.  The works must be undertaken in accordance with an Operational Works approval and be generally in accordance with The Site Based Stormwater Management Plan Report – Report No. 5588-1.0 dated 8 June 2017 prepared by Storm Water Consulting and must include in particular the use of gravity stormwater drainage.
Electricity and Telecommunication Services
Unless otherwise stipulated by telecommunications legislation at the time of construction, the development must be provided with all necessary conduits, pits and pipes to accommodate the future connection of optic fibre technology telecommunications.
Certification must be submitted to Council from all relevant service providers which certifies that the development has met the requirements of this Decision Notice and all applicable legislation at the time of construction.
Easements
An easement for access purposes must be registered in favour of Lot 59 RP228906 against the title of Lot 280 SP104321. The easement must be of sufficient width to provide for free access for all customer, service and emergency service vehicles. The easement must be registered prior to the commencement of the use.
Unless otherwise agreed in writing by the relevant service provider, any public or third party infrastructure located on the subject site must be placed within an easement registered against the title of the property.
All easements must be designed in accordance with the planning scheme and granted at no cost to the Grantee.  Where the Grantee is Council or a service authority, the easement documentation must be in accordance with the Grantee’s standard easement terms.  Draft easement documentation must be submitted to Council for endorsement.
All works must be kept clear of any existing or proposed easements on the subject land, unless agreed otherwise in writing by the Grantee.
Earthworks and Retaining Walls
All fill and associated batters must be undertaken in accordance with an Operational Works approval, and contained entirely within the subject site unless written permission from the respective landowner(s) is provided to Council.
All retaining walls must be designed and constructed in accordance with the planning scheme and must be certified by an RPEQ where exceeding 1.0m in height. All retaining walls that are publicly accessible and exceed 1.0m in height must be fitted with a commercial grade safety fence.
Damage to Services and Assets
Any damage caused to existing services and assets as a result of the development works must be repaired at no cost to the asset owner at the following times:
where the damage would cause a hazard to pedestrian or vehicle safety, immediately; or
where otherwise, upon completion of the works associated with the development.
Any repair work which proposes to alter the alignment or level of existing services and assets must first be referred to the relevant service authority for approval.
Agree to the use of the existing lane between 62 and 64-66 Rene Street for access purposes for the development.

REPORT
PROPOSAL
The application seeks approval for a code assessable Material Change of Use for an Industrial Business Type 1 Warehouse for a self-storage facility (OnGuard Storage). The proposal involves extending the existing storage facility at 64 – 66 Rene Street to include 62 Rene Street.
The new facility at 62 Rene Street will comprise a 3 storey building partially excavated into the site with the basement level to be utilised for the storage of bulky goods such as boats, trailers, vehicles and the like. The ground and first floor is intended to be used for general self-storage with units ranging in size from 5.7m2 to 24m2.
Access arrangements comprise a rear entry driveway which circulates via the adjoining lot (64 – 66 Rene Street), across a Council controlled lane and leads to a turnaround bay provided within the site at basement level. As a result of this arrangement, an easement is proposed over a small portion of Council’s lane which runs parallel north to south between 62 Rene Street and 64-66 Rene Street. A driveway and crossover will also be developed at the site’s frontage to provide access directly off Rene Street. The associated car parking (4 car parks) and a loading dock facility is also proposed in this location.
The building will have a total floor area of 4,159m2 and an associated use area of 3,467m2. A total landscaped area of 338.1m2 is proposed equivalent to 16.1% of the site area.
Building materials comprise a block wall for the basement level and structural insulated wall panel for the ground and first floor. The gable roof has a 2 degree pitch with a zero overhang. Building elevations are unarticulated, with the front façade having a parapet and a mix of materials. Proposal plans are provided in Attachment 1.
In addition to the Material Change of Use approval, the application also seeks a Development Permit for Operational Works (Advertising Devices). Approval is sought for advertising devices across the site’s (62 Rene Street & 64 – 66 Rene Street) three buildings. Various walls signs and awning signs are proposed on both the existing buildings at 64 – 66 Rene Street and the proposed building at 62 Rene Street. The signage will equate to a total sign face area of 31.98m2 across the three buildings. No illuminated signage is proposed. Proposal plans of the advertising devices is provided in Attachment 2.
A locality plan of both sites is provided below in Figure 1.
Council Laneway
Council Laneway
64-66 Rene Street
64-66 Rene Street
62 Rene Street
62 Rene Street
Figure 1 – Subject Site
site details
Background
A combined Material Change of Use for an Industrial Business Type 1 (Self-Storage Facility) and Operational Works (Advertising Devices) was submitted to Council on 26 June 2014 for 64-66 Rene Street. Approval was sought to operate a self-storage facility from an existing and proposed building.
Council resolved to approve the Material Change of Use and refuse the application for Operational Work (Advertising Devices) on the basis that the proposal represented excessive signage for a single business; would result in unnecessary visual clutter and adversely impact on the visual amenity of the area. In addition, the applicant was requested to remove all excess signage to ensure signage complied with the Advertising Devices Code of The Noosa Plan.
Subsequently, the applicant appealed Council’s decision to the Planning & Environment Court. On June 2015 Council agreed to settle the appeal with a Development Permit for Operational Works issued for some additional signage approved. The appeal was settled on the basis that the total combined signage was reduced with the existing building not exceeding 12.53m2 and the new building not exceeding 9.23m2 given each building was considered a premises and the site could be reasonably subdivided into 2 lots. Approval was also issued for two 5.9m2 “Self Storage” wall signs to be fixed to each of the buildings.
Council inspected the premises following the completion of the development in late 2015. A Show Cause Notice was subsequently issued as signage exceeded the approved area for the site. The applicant failed to appropriately address the matter and an enforcement notice was then issued.
The applicant appealed the Enforcement Notice to the Planning and Environment Court on 4 July 2016.
The Court is aware of the process and are awaiting the outcome of the application before the matter is set down for trial.
Following appointment of court mediation, the applicant advised of his intentions to lodge this application.
Site Description
62 Rene Street
Existing buildings generally comprising sheds and unenclosed car ports have been developed across the lot. The site has been mostly sealed and an existing drainage easement is located in the south-western corner.
The land naturally slopes from north to south, down from Rene Street.
64 - 66 Rene Street
The lot has recently been redeveloped for storage units. Existing buildings onsite include two multilevel self-storage facilities. Two crossovers have been developed off Rene Street which provides access and circulation throughout the site. The use is currently operational.
A drainage easement is located in the south-eastern corner of the site and the land naturally slopes from north to south.
Surrounding Land Uses
Adjoining land uses include a civil and electrical contractor (Hendrie Brothers) to the west and a concrete batching plant to the east. A Council owned access lane is located in between 62 and 64-66 Rene Street which provides access from Rene Street to a reserve to the rear. The lane is intended to provide access to the reserve to undertake maintenance.
Lots in the immediate area are zoned industry.
assessment
Instruments for Statutory Assessment
Under the Sustainable Planning Act 2009 the application must be assessed against each of the following statutory planning instruments to the extent they are relevant to the development:
State Planning Policies;
the South East Queensland Regional Plan;
State Planning Regulatory Provisions;
any Structure Plan or Master Plan in place for declared areas;
any Preliminary Approval Overriding the Planning Scheme for the land;
the Planning Scheme for the local government area; and
any Temporary Local Planning Instrument in place for the local government area.
Of these, the statutory planning instruments relevant to this application are discussed in the sections that follow.
State and Other Statutory Instruments
State Planning Policies
The following State Planning Policies are applicable to this application:
State Planning Policy July 2014
The above State Planning Policies have been deemed by the Minister for Local Government and Planning as appropriately reflected in the Planning Scheme and therefore do not warrant a separate assessment.
South East Queensland (SEQ) Regional Plan 2009 - 2031
The site is located within the Urban Footprint area of the SEQ Regional Plan and the proposal is consistent with the regional policies of the SEQ Regional Plan.
State Planning Regulatory Provisions
The following State Planning Regulatory Provisions apply to the application:
SEQ Regional Plan Regulatory Provisions
The proposal is for an urban activity within the Urban Footprint and is consistent with the SEQ Regional Plan Regulatory Provisions
Statutory Instruments – Planning Scheme
The subject site is located in the Noosaville Locality and is zoned Industry. The proposed use is identified as a consistent use within the zone and is required to follow a code assessable application process.
Locality Provisions
The proposed development has been found to generally comply with the Locality Provisions. The Planning Scheme outlines key parameters for the development which are identified in the following Table with pertinent issues discussed thereafter:
Criteria	Planning Scheme	Proposal	Complies
Site Area	1000m²	2,096m²	
Landscaped open space Soft landscaping Landscaping Setbacks	314m² min 15% of the site 2.0m to uncovered car parking	338.1m² 16.1% 2.0m to loading bay	
Building height storeys metres	2 storeys max 10 metres	3 storeys 10.38 metres	X X
Boundary setbacks Frontage (primary) West Side East Side South Side	6 metres min 0 metres min 0 metres min 3 metres min	7 metres .9 metre 1 metre 5.2 metres	
Car parking	7 spaces min	4 spaces	X

Building Height
The Noosa Plan nominates a maximum building height of 10m and 2 storeys in the Industry Zone in Noosaville. The maximum building height is nominated to ensure buildings and other structures do not visually dominate the street and preserve the amenity of surrounding land.
The application proposes a 3 storey development with a maximum building height of 10.38m relative to the finished and natural ground level measured at the rear of the building. The height encroachment is shown in Figure 2 below. Although a basement is proposed, largely as a result of the natural slope, the finished floor level has not been sufficiently excavated into the site to meet the Planning Scheme definition and results in the development comprising 3 storeys.
While the proposed building exceeds the maximum height in storeys and metres, the proposal is unlikely to impact on the amenity of the adjoining land. Dense vegetation in Council’s reserve fully screens the development from residential lots to the south and the existing self-storage facility to the east hides the proposed building from Rene Street and from adjoining lots further to the east.
The proposed building is however prominent from the adjoining development to the west and viewable from Rene Street if traveling east. To minimise building bulk, the plan of development incorporates a tapered setback from the adjoining lot to the west. The building tapers to a maximum setback of 8.9m at the south-western corner where the Planning Scheme permits a zero setback. A substantial landscaped area is also proposed in this location which will provide adequate screening and visual relief from the adjoining lot.
The building will also present no more than 2 storeys when viewed from Rene Street and has a maximum vertical height of 8.75m in this location.
The proposed building height raises no major concern and is recommended for approval with the inclusion of landscaping conditions to soften building bulk and provide a reasonable screen to the west.

Figure 2 – Area of Building Height Encroachment
Car Parking
The application proposes a total use area of 3,467m2. Based on a car parking ratio of 1 space per 500m2 of use area, the development triggers a total of 7 car parks. Four marked spaces are proposed along the site’s frontage to Rene Street which represents a 3 space shortfall.
A 18m x 10m loading dock is also proposed in this location and the applicant suggests this area is intended to informally accommodate 4 vehicles or 2 trucks. It is further suggested that the proposed basement area will operate independently from the ground and 1st floor levels with no lift access provided linking these levels. On this basis the proposed driveway provides self-regulated and unmarked parking for this area.
Discussions with Council’s Development Engineer confirms the basement driveway provides sufficient area to accommodate self-regulated parking for vehicles with passing opportunities.
Given the layout and nature of the use, the proposed lined marked car parking at the site’s frontage, loading bay at ground level and self-regulated parking at basement level is an appropriate response to address the likely car parking demand associated with the use. The majority of customers will utilise the basement driveway or docking station for loading and unloading of goods intended for storage.
Land Use & Works Provisions
The following codes which regulate land use and design are applicable to this application:
Business Uses Code
Advertising Devices Code
Engineering Works Code
Landscaping Code
The proposed development has been found to generally comply with these Codes. The pertinent issues relating to signage are discussed below:
Advertising Device
The application seeks an Operational Works approval for Advertising Devices for various wall signs across the three buildings over both sites (62 & 64-66 Rene Street). More specifically, approval is sought for 10 existing wall signs currently installed and operational on Building 1, two wall signs on Building 2 and three proposed wall signs to be fixed to Building 3 at 62 Rene Street. Proposal plans are provided in Attachment 2.
The application proposes a total sign face area of 31.98m2 across the 3 buildings and seeks approval for a “Self Storage” wall sign fixed to each of the buildings with a sign face area of 5.9m2 in lieu of 4m2 sought under the code.
Details of individual signage proposed to each building is set out below under Figures 3, 4 and 5.

Figure 3 – Building One: Sign Face Area

Figure 4 – Building Two: Sign Face Area

Figure 5 – Building Three: Sign Face Area
Specific Outcome O7 of the Advertising Devices Code nominates a maximum sign face area of 10m2 per tenancy with a maximum sign face area of 4m2 per wall sign. The Code nominates such dimensions to ensure advertising devices do not unduly detract from the area by visually dominating the appearance of a building or being visually intrusive on the streetscape or setting in which it is located.
Although exceeding the maximum sign face area for an individual sign and total sign face area, the proposed devices across the 3 buildings are generally considered consistent with the nature of each building with regards to building bulk and scale and previous signage approved. Each of the lots are substantial in size (62 Rene St – 2,094m2 & 64-66 Rene St – 4,046m2) and able to accommodate subdivision with a minimum lot size requirement of 1,000m2 nominated for the Industry Zone.
On this basis, the proposed devices across the three buildings are considered appropriate in scale and unlikely to cause visual clutter or detract from the streetscape and amenity of the area.
Council Laneway
The application seeks approval to cross a section of Council’s laneway in order to obtain access to the proposed basement at 62 Rene Street. Vehicle circulation is proposed via a cross over from 64-66 Rene Street which leads to the basement of the proposed self-storage facility.
The laneway is intended to provide access to reserve land to the south for maintenance purposes. Council’s Property and Natural Areas section have advised that they have no objection to the proposal providing the usability of the laneway for its intended purpose is not compromised. Conditions of approval have been recommended accordingly.
Public Notification
The application is code assessable and therefore is not required to be publicly notified.
conclusion
Approval is sought for a combined Material Change of Use for Industrial Business Type 1 (Self-Storage) and Operational Works for Advertising Devices. The proposed land use is recognised as a consistent use in the Industrial Zone and complies with the acceptable measures of The Noosa Plan with the exception of building height and car parking ratios.
Although exceeding maximum building height in metres and storeys, the building presents positively to Rene Street and is appropriately screened and buffered from adjoining uses so as not to detract on the amenity of these lots.
With regards to car parking, the application proposes a combination of formal and unmarked self-regulated parking at ground level and basement level which is considered an appropriate response based on the nature of the use.
Approval is sought for existing advertising devices on Buildings 1 and 2 and proposed devices on Building 3. The proposed advertising devices are considered appropriate based on the scale and bulk of each building and size of both lots and previous approval granted.
Departments/Sections Consulted:
	Chief Executive Officer		Community Services		Corporate Services
	Executive Officer		Community Development		Financial Services
	Executive Support		Community Facilities		ICT
			Libraries & Galleries		Procurement & Fleet
			Local Laws		Property
			Waste & Environmental Health		Revenue Services
					
	Executive Services	x	Environment & Sustainable Development		Infrastructure Services
	Community Engagement		Building & Plumbing Services		Asset Management
	Customer Service	x	Development Assessment		Buildings and Facilities
	Governance		Economic Development		Civil Operations
	People and Culture		Environmental Services		Disaster Management
			Strategic Land Use Planning		Infrastructure Planning, Design and Delivery
					

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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT	12 SEPTEMBER 2017

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